According to the spec, the reference list for a slice should be
constructed by first generating an initial (what we now call "default")
reference list and then optionally applying modifications to it.

Our code has an optimization where the initial reference list is
constructed for the first inter slice and then rebuilt for other slices
if needed. This, however, adds complexity to the code, requires an extra
2.5kB array in the codec context and there is no reason to think that it
has any positive effect on performance. Therefore, simplify the code by
generating the reference list from scratch for each slice.